Select Contract Issues Development Risks ‐ Design • PPP Arrangements – Agency takes design to conceptual/preliminary level and Concessionaire is responsible for design and construction • Greater design control vested in Concessionaire and less Agency control • Allows shifting of significant design risk to the private entity • Can result in Agency receiving design warranties – Movement in PPP deals to performance ‐ based specifications focusing on outputs and not means/methods exemplifies the risk shift
Select Contract Issues Development Risks – Enviro/Permitting • Traditional Contracts – Traditional approach is for the Agency to obtain all major environmental approvals and many of the major permits – Underlying assumption that facilities are permitted • PPP Arrangements – As design responsibility shifts, some of the permitting responsibility and risks shift with it – Agency remains responsible for major environmental clearances • Market has shown little appetite for taking this level of risk
Select Contract Issues Change Over Time ‐ Change of Law • Traditional Contracts – Traditional approach is for the Agency to bear the risk of change in law – There may be some limited exceptions such as: • Requirement that the change be “material” or have a minimum dollar impact • Income taxes • PPP Arrangements – Similar to traditional during design/construction phase – Different approach during operations phase
Select Contract Issues Change Over Time ‐ Change of Law • Operations Phase – Concept of “Discriminatory” vs. “General” Change of Law • General Change of Law – Something of general application • Example – change in labor/OSHA laws – Risk often passed on to Concessionaire • “Discriminatory” Change of Law – Definition is very project ‐ specific – Targets project or particular owner (or in some cases, a class of owners) – Risk generally retained by the Agency
Select Contract Issues Change Over Time ‐ Change in Standards • Similar in many respects to Change in Law • Additional issue with Change in Standards is not only cost responsibility but timing of implementation (even for a “general” change in standards) • Cost responsibility – Similar Discriminatory vs. General Change in Standards construct as with Change in Law
Select Contract Issues Change Over Time ‐ Change in Standards • Timing of implementation – Depends on what kind of change in standards/reason • Safety standard – Immediate implementation may be required • Non ‐ safety – Need for capital work or replacement – Period articulated in the applicable manual or changed standard – When the Agency starts to implement on its own or similar facilities
Select Contract Issues Financial Issues ‐ Revenue Sharing • Compensation to an Agency in a PPP can take many forms – Upfront payment – Monthly/annual concession or lease payment – Revenue sharing • Issues with Revenue Sharing – Purpose – Sharing risk and upside vs. avoiding runaway profits – Net vs. Gross – Amount of sharing – Priority of payment
Select Contract Issues Financial Issues ‐ Refinancings • Refinancing of Project Debt can happen for many reasons – Planned in financial model – Better market conditions – Restructuring of a troubled project (“rescue refinancings”) • Issue – Should Agency share in any refinancing gain?
Select Contract Issues Financial Issues ‐ Refinancings • If refinancing was planned or part of base case financial model or is a rescue refinancing, rationale for sharing not very strong • Stronger case can be made if “unplanned” refinancing • If share, key issues include: – How do you measure “gain”? – What is the share? – Any “black ‐ out” periods?
Select Contract Issues Agency Oversight Issues • Traditional Contracts – Agency plays very active oversight role • Direct design review and approvals • Performs or hires consultants as a GEC for major and construction and improvement work • Performs or hires consultant for major QC/QA role • Prescriptive specifications and requirements – Underlying Rationale • Public $ • Little long term private sector role or alignment in interest between public and private sector
Select Contract Issues Agency Oversight Issues • PPP Arrangements – Underlying rationale is different • Private $ • Longer term relationship means Concessionaire has to address life ‐ cycle cost issues • In a development/greenfield project, Concessionaire does not start earning $/revenues unless facility complete and opened • Additional parties have interest in completion and quality work (e.g., lenders)
Select Contract Issues Agency Oversight Issues • PPP Arrangements – Significant and direct Agency oversight and QC/QA role replaced by: • Focus on performance ‐ based standards • Concessionaire QC/QA – Agency approval of QC/QA program • Independent Engineer – Mutually retained – QC/QA Auditing and Oversight • Agency spot ‐ checking
Select Contract Issues Performance Security Issues • Traditional Contracts – Contractor posts 100% payment and performance bonds – Contractor entity is generally a corporation that has history and assets – Potential parent guaranties
Select Contract Issues Performance Security Issues • PPP Arrangements – Concessionaire typically a single purpose entity (SPE) with no assets/history – No parent guaranties typically – Bonding for construction generally runs from DB contractor to SPE, not Agency – Bonding for O&M period is uncommon – Trends: • Increased use of Letters of Credit • Not 100% bonding
Select Contract Issues Performance Security Issues • PPP Arrangements: Why Does The Performance Security Structure Work – Equity will act to protect itself – Lenders interests aligned in many respects with Agency • Will act to protect its debt and collateral through exercise of “step-in” rights • Critical to ensure that “alignment” of interests is preserved and termination compensation provisions do not eliminate the alignment
Session 1: What Are P3’s? P3 Financial Tools Lisa Fenner, KPMG
P3 Financing Tools Overview • Financing options available to ADOT • Overview of innovative financing tools • Why the P3 financial model works
P3 Financing Tools AZ HB 2396 Revenues Financing Tools • Tolls and user fees • GARVEE bonds • Sale of development • Revenue bonds rights • TIFIA credit support • Federal, state, local • Private Activity Bonds sources • Private Equity • Lease proceeds • Project finance • Rent payments • Availability payments
P3 Financing Tools TIFIA Credit Program • The Transportation Infrastructure Finance and Innovation Act of 1998 (TIFIA) established a Federal credit program for eligible transportation projects of national or regional significance • Eligible projects include public or private highway, transit, rail and port projects over $50 million and ITS projects over $15 million • Three forms of credit assistance are available: – direct loans – loan guarantees – standby lines of credit • Provides maximum flexibility of repayment terms • Is subordinate to other debt • Limited to 33 percent of project cost • $6.6bn is currently active, awaiting commitment or retired
P3 Financing Tools Private Activity Bonds • $15 billion authorized for surface transportation projects • To date the Capital Beltway in Virginia is the only PPP project funded using this tool • PABs have been assumed in finance plans for several other projects that have not reached financial close • Surface transportation PABs allow tax ‐ exempt bonds to be issued for infrastructure PPP projects • Allocations made by the USDOT based on project economics • PABs are subject to the Alternative Minimum Tax (AMT) • PAB issuances fell 51.9% from 2007 to 2008 (2008 ‐ $28.3bn; 2007 ‐ $13.7bn) due to market conditions
P3 Financing Tools Transit Oriented Development • A transit ‐ oriented development (TOD) is a mixed ‐ use residential or commercial area designed to maximize access to public transport, and often incorporates features to encourage transit ridership. • Transit Oriented Development – Limits traffic congestion – Reduces urban sprawl – Assists in revival of City centers • TODs can create additional opportunities for developer compensation or provide additional funding to the public agency • Revenues from TOD are typically captured as incremental growth in property tax or sales tax revenues • Additional revenues may be generated from development opportunities granted to developer such as parking or retail development
P3 Financing Tools Public Finance Model • Capital Structure typically 100% debt financed – Limited capacity due to coverage constraints and bond rating goals • Conservative view of revenue • Capacity limited to revenues expected during term of debt Revenues Debt Funding Past Today 40 yrs 70 yrs
P3 Financing Tools P3 Finance Model • Capital Structure a mix of – Senior and Subordinate/Mezzanine Debt – Equity • More aggressive view of revenues • Ability to capture revenues to equity beyond normal bond maturities Revenues Equity Funding Debt Funding 70 yrs Past Today 40 yrs
P3 Financing Tools Impact of Current Market Cost of debt has gone up and terms are less favorable to borrowers • Bank Debt – Shorter terms and lower loan limits resulting in more “club” structures – Clear preference for availability ‐ style P3s with limited appetite for real toll/Greenfield projects – Increased regulation expected • Tax ‐ Exempt Bonds – Limited market due to collapse of Monoline insurance market and decline in bank LOC availability – PABs subject to AMT have met with limited investor appetite to date – Temporary elimination of AMT on PABs issued through 2010 may stimulate issuance • TIFIA – Constrained capacity to make loans due to budget reductions • Taxable Bonds – Expands investor base but limited appetite for low investment grade debt – Typical make ‐ whole call provisions make future refinancings challenging
P3 Financing Tools Impact of Current Market Cost of equity has also gone up, but significant amounts available • Equity playing a much larger role – lower upfront leverage • Some recent deals initiated with 100% equity capital
September 29, 2009
Session 2: P3 Implementation Best Practices, Lessons Learned Moderator – Rebecca Brooks, WSA P3 Program Development and Project Identification, Grant Holland, WSA P3 Procurement – Corey Boock, Nossaman P3 Market Overview, Andrew Garbutt, KPMG
Session 2: P3 Implementation Best Practices, Lessons Learned P3 Program Development and Project Identification Grant Holland, WSA
Why Use a P3? • Shift risks – Construction – Operations – Financial – Revenue • Accelerate Mega ‐ Projects • Add New Capacity • Leverage existing funds • Better match cost to beneficiaries
ADOT’s P3 Authority • Authorizes ADOT to enter into public private partnerships • Authorizes ADOT to use a number of delivery methods • Projects can be solicited and unsolicited – If unsolicited, ADOT has to decide to pursue and then conduct a competitive procurement – ADOT can charge an administrative fee for unsolicited proposals • ADOT can undertake P3s on behalf of other governmental entities
Project Selection • Projects can be awarded on “best value to state” – Price – Financial Proposal – Other factors • Evaluation factors ADOT may consider – Cost – Financial Commitment – Innovative Financing – Technical, Scientific. Technological, or socioeconomic merit – Other factors • Selection Criteria must be disclosed in the procurement
Tolling • Tolls Allowed – Toll setting mechanism must be included in the project agreement – Allows ADOT to participate in Project revenues • Authorizes a variety of traffic management approaches – General purpose toll lanes – HOT Lanes – Time of Day pricing • Does not limit ADOT’s ability to build any planned facilities – ADOT can build unplanned facilities but with comepnsation if it impacts revenue • Provides for enforcement of tolls • Misuse of, including negligently securing data, results in a $10,000 fine per violation
Other Provisions • Does not limit ADOT’s ability to build any planned facilities – ADOT can build unplanned facilities but with compensation if it impacts revenue • ADOT may pay a stipend • ADOT can issue Public Activity Bonds • ADOT may utilize TIFIA
Eligible Facilities • Highways • Rail Yard and Storage • Railways • Vehicles • Monorails • Rolling Stock and other related equipment, • Transit items or property • Bus Systems • Other related facilities • Guided Rapid Transit and structures • Parking Facilities
P3 Feasibility • There Is No Single Factor That Makes a P3 Project Feasible • P3 Feasibility is Not an Issue of Design and Construction – Design and construction typically constitute about 5% to 10% of a concession’s term • Feasibility of a P3 Project is Driven by Financial and Contractual Considerations • Support of Project by Public Sector
P3 Types • Project Structures – Design/Build – Design/Build/Finance – Design/Build/Operate/Maintain – Design/Build/Finance/Operate Maintain (Availability Payments) – Pure concession • Projects – New Capacity – Congestions Reliever – Development Driven – Managed Lanes – Rehabilitation
Elements of P3 Feasibility • Statutory Framework – Authority to enter into a P3 – Ability of public to participate financially in P3 – Predictable revenue stream – DOT or Transportation Commission/Board as power to approve agreement • Project Costs – Capital costs – Operations & Maintenance – Long ‐ term or capital maintenance – Future expansion needs
Elements of P3 Feasibility • Economic Considerations – Local economic drivers • Employers • Population growth • Tax base – Income levels – Employment levels • Traffic and Revenue – How does the proj ect fit into the regional transportation network? – Alternative routes – What, when and where are future facilities planned
Elements of P3 Feasibility • Project’s Risk Profile • Project’s Risk Profile – Startup – Startup – Design and construction issues – Design and construction issues – Toll rate regime – Toll rate regime – Toll enforceability – Toll enforceability – Change in laws or regulations – Change in laws or regulations – Permit/Environmental – Permit/Environmental – Termination – Termination
P3 Feasibility • There Is No Single Factor That Makes a P3 Project Feasible • P3 Feasibility is Not an Issue of Design and Construction • Feasibility of a P3 Project is Driven by Financial and Contractual Considerations
Session 2: P3 Implementation Best Practices, Lessons Learned P3 Procurement Corey Boock, Nossaman
Overview • Procurement Approach – Hard Money/Committed Concession vs. PDA • Procurement Process
Procurement Approach – Hard Money/Committed Concession vs. PDA
Delivering the Greenfield/Development Project • 2 Main Procurement Options for PPP: – Hard Money/Committed Concession • Includes DB, DBF, DBFO (Availability), Concession – Pre-Development Agreement (PDA) • Both contemplated by new AZ legislation • Advantages/disadvantages to either approach – Both successfully used in US
Hard Money/Committed Concession vs. PDA Hard Money/Committed Concession • Parties = Agency and Developer/Concessionaire • When to Use – Project well defined – Major environmental approvals in hand or close (e.g., NEPA/CEQA environmental clearances, 404 Permit) – Preliminary engineering complete or close – Technical standards/specifications developed or close – Basically, the project is able to be priced by engineers/contractors and equity and debt sources will be willing to commit to financing
Hard Money/Committed Concession vs. PDA Hard Money/Committed Concession • Items Needed to Pursue: – Environmental Approvals (in hand or close) – Preliminary Engineering – If a toll concession, intermediate level traffic & revenue reports – Documents that allow full project pricing and financing commitment • Form of P3 Agreement that sets out full elements of business deal, including risk allocation • Technical Provisions/requirements that set out full project scope and requirements
Hard Money/Committed Concession vs. PDA Hard Money/Committed Concession • Items Needed to Pursue (cont’): – Team • Internal Team – Technical, Financial, Legal • External Team – Financial, Technical and Legal Advisors – Traffic & Revenue Consultant – Insurance Advisor • Team/apparatus to administer contract, project delivery and operations phase – $ to fund pre-development and procurement costs – $ to support any public subsidy or compensation that may be payable to private sector under PPP agreement
Hard Money/Committed Concession vs. PDA Hard Money/Committed Concession • Result of the procurement process: – Committed pricing and financing – defined financial proposal – Defined technical proposal for development – P3 Agreement that defines project scope, financial terms, obligations and risk allocation
Hard Money/Committed Concession vs. PDA PDA • Parties = Agency and Developer/Concessionaire • When to Use – Project less defined – Major environmental approvals, preliminary engineering, technical standards development not complete or close – Could benefit from private sector innovation and ideas in the concept phase, private sector energy and (potentially) cost- sharing/sweat equity • These items may substantially accelerate development of project
Hard Money/Committed Concession vs. PDA PDA • Items Needed to Pursue: – Project concept/basic alignment – Basic feasibility analysis – Documents that allow pricing of pre-project delivery scope • Form of P3 Agreement that sets out obligations for pre-project delivery, milestones and compensation • Technical Provisions/requirements that guide the project definition/development phase and that will generally apply to future delivery
Hard Money/Committed Concession vs. PDA PDA • Items Needed to Pursue (cont’): – Team • Internal Team – Technical, Financial, Legal • External Team – Financial, Technical and Legal Advisors • Team/apparatus to administer contract and undertake pre-project delivery scope of work – $ to fund procurement (less than under the Hard $/Committed Concession Model)
Hard Money/Committed Concession vs. PDA PDA • Result of the procurement process: – Conceptual financial and technical proposal – A pre-development agreement – Developer assists and supports agency with enviro process (Agency still prepares enviro docs) • Can perform studies, prelim engineering • Can help develop delivery plan and financial plan – Private entity may or may not be paid for this work and may contribute “sweat equity”
Hard Money/Committed Concession vs. PDA PDA • Private entity often receives a right of first negotiation when the project is defined and capable of being priced and financed • If milestones aren’t achieved or a deal cannot be reached with the private entity, the private entity may get paid something (more) for their services and agency is free to procure a Hard Money/Committed Concession or other means to deliver the project
Hard Money/Committed Concession vs. PDA PDA • Unlike a Hard Money/Committed Concession, a PDA is not the last step before “delivery” commences • PDA will lead to: – Negotiated concession agreement; – Negotiated “other delivery model” agreement; or – Procured concession agreement; or – Procurement using other delivery model • Most items “needed” for Hard Money/Committed Concession will ultimately still be needed under a PDA
Hard Money/Committed Concession vs. PDA Comparison - Scope Private Partner Role PDA Hard $ Private partner participation in Strategic partner Minimal Role predevelopment work Project definition Strong Weak Technical and Environmental review None economic analysis Preliminary T&R work Yes No Investment grade T&R study Yes Yes Only via Alternative Technical Concepts at Value engineering Yes, all stages proposal stage, and post- award design Stakeholder relations Possibly More limited
Hard Money/Committed Concession vs. PDA Comparison - Scope Private Partner Role PDA Hard $ Technical specification Only via industry review and Direct participation development comment Financial planning Yes Yes analysis
Hard Money/Committed Concession vs. PDA U.S. Examples Where Used • Hard Money Concessions – IH 635 and North Tarrant Express Projects (Texas DOT) – Port of Miami Tunnel and I-595 (Florida DOT) • PDAs – SR-91 and SR-125 (Caltrans) – TTC-35 and TTC-69 (Texas DOT) – Mid-Currituck Bridge (North Carolina Turnpike Authority)
Procurement Process
Procurement Process Overall Timeline • Hard Money/Committed Concessions – Approximately 15-21 months (12-15 months to execution; 3-6 months to financial close) • Assumes technical and “committed” financial proposal submittal – 3-5 months for submittal of proposal after RFP issued • Depends on complexity of technical submittal requirements and required “commitment” level of financial proposal • PDAs – Approximately 9-15 months – 2-3 months for submittal of proposals after RFP issued
Procurement Process Comparison PDA Hard $ Selection Qualifications/Concepts Defined Financial/Technical Criteria Competition For P3 Yes for PDA Scope Yes Agmt. Sole source negotiation for ultimate deal (subject to price reasonableness) Transparency Moderate High Timeline 9-15 months 12-18 months
Procurement Process Phases • Procurement is in 5 or 6 Phases (AZ legislation allows this approach) – RFQ (2-3 months) • Result: Shortlist of 3-5 Proposers – Industry Review (2-3 months) • Result: Issuance of RFP – RFP (3-5 months) • Result: Proposals – Selection/Award/Negotiations (2-3 months) • Result: Apparent Best Value Proposer – Commercial Close (1 month) • Executed P3 Agreement – If Hard Money/Committed Concession, Financial Close (3-6 months) • Financially closed deal
Session 2: P3 Implementation Best Practices, Lessons Learned P3 Market Overview Andrew Garbutt, KPMG
P3 Market Confidence: 2005 2011 Confidence Level x x x x x x x 2005 2006 2007 2008 2009 2010 2011
2005/2006 • US P3s – “ The next big thing for the global infrastructure market” • Pioneer States: Texas, Florida, Virginia – Procuring multiple P3 projects • USDOT supportive • High profile monetization transactions in the market – Indiana Toll Road – Chicago Skyway – Chicago Parking
2007/2008 • Growing interest across states • More state enacted P3 legislation • Contractors, lenders and investors “bullish” • Political backlash from interest groups • Texas toll road moratorium • Federal political uncertainty (2008) • Credit crunch bites • Economic downturn • Project economics begin to suffer • High profile setbacks – Pennsylvania Turnpike, SH 121 (Politics not project economics won the day)
2009 “A Year of Contradictions” The Bad The Good • The credit crunch continues • Infrastructure is high profile • Dislocation in the capital markets • Federal stimulus bill • Declining federal, state and local tax • More states and municipalities looking revenues seriously at P3, e.g., Arizona, Michigan, California, Los Angeles, NYC • Uncertainty regarding SAFETEA ‐ LU reauthorization • Equity markets open for business • TIFIA close to capacity • Debt markets open for business • Not a good time for asset monetizations • New P3 sectors opening up, e.g., Long Beach Courthouse, Michigan Data • Still too many “political stumbling blocks” Centers • Credibility gap seen at state legislature • Good deals still getting done level – TxDOT North Tarrant Express & • Some infrastructure players moving out I ‐ 635 of the US market – FDOT I ‐ 595 • Seed dollars are scarce – FDOT POMT – financial close imminent
2010/2011 “What This All Means” • The world hasn’t ended! • The P3 market continues to grow • More sectors opening up, particularly social infrastructure • Deal structuring is more robust – lenders paying attention • Non ‐ revenue risk models gaining popularity • This is about infrastructure not financial engineering • A big uptick in feasibility work – VFM & costs benefit analysis • An increasing recognition at federal and state levels of the need and value for robust comparator analysis But… • Political issues still seen as more harmful than economic issues • The P3 industry needs to continue to provide unbiased education to stakeholders
P3 Market Confidence: 2005 2011 Confidence Level x x x x x x x 2005 2006 2007 2008 2009 2010 2011
Arizona’s Next Steps Toward P3 Implementation Gail Lewis Assistant Director for Policy and Governmental Affairs Arizona Department of Transportation
New Criteria for Infrastructure • Affordability – can we afford to build it? Can we afford to maintain it? • Sustainability – can we build it greener? Can we maintain it greener? What will be the long term impact on environmental sustainability? • Mobility – will it enable the movement of people and goods today? Tomorrow? Will it reduce congestion? Will it improve safety? Will it improve economic opportunity? Or, to quote HNTB: Lean. Green. Keen.
ADOT’S Key Needs • Enhanced capacity in urban areas • Greenfield projects to accommodate new growth • Border connectors • Rest areas! • Transit and rail?
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